Methodology
Scope of the Report
As mentioned in the introduction this report defines corruption, in line with international legal
instruments as any ‘abuse of power for private gain’. Although the exact meaning and scope
of the concept are the object of academic debate, this implies that the Report covers two
aspects. First, it covers specific acts of corruption and those measures that Member States
take specifically to prevent or punish corrupt acts as defined by the law. Secondly, it covers
certain types of conduct and measures which impact on the risk of corruption occurring and
on the capacity of a State to control it. Consequently, the Report deals with a wide range of
issues associated with corruption, including, in addition to bribery, trading in influence, abuse
of office, aspects related to nepotism, favouritism, illegal lobbying, and conflict of interests.
The aim of this first EU anti-corruption report is to keep the focus on a limited number of key
corruption-related issues. Wider aspects are mentioned for contextual coherence.
Constitutional arrangements (degree of devolution of power, position of judiciary, prosecutors
vs executive branch), the organisation and quality of the civil service, active role of the state
in the economy, privatisation are relevant from a corruption point of view. The report does not
make any general value judgement on constitutional arrangements, or on how the boundary is
drawn between state and private ownership. Hence, it is neutral with respect to
decentralisation, but does look into whether adequate control mechanisms to manage
corruption risks are in place. The same applies to privatisation: the transfer of state assets in
private hands carries certain corruption risks, but may reduce long-term risks related to
corruption, nepotism and clientelism. The report looks only at whether transparent,
competitive procedures are in place to reduce the risk of corruption. Finally, there are
different legal and constitutional arrangements concerning the relation between prosecution
services and the executive power. The report is neutral with respect to the different models,
since it only examines whether the prosecutors are able to pursue corruption cases in an
effective manner.
Sources of information
The Commission was determined to avoid duplicating existing reporting mechanisms and
adding to the administrative burden on Member States which are subject to various resourceintensive
peer review evaluations (GRECO, OECD, UNCAC, FATF, Moneyval). The report
is therefore not based on detailed questionnaires or expert country visits. It is based on the
abundance of information available from existing monitoring mechanisms, together with data
from other sources including national public authorities, research carried out by academic
institutions, independent experts, think-tanks, civil society organisations etc.
Furthermore, the report draws on corruption-related information concerning a wide range of
policy areas (e.g. public procurement, regional policy,) coming from various Commission
departments and the relevant EU agencies (Europol and Eurojust). Studies and surveys were
specifically commissioned for the purpose of further extending the knowledge base in areas
relevant to the report. An extensive study on corruption in public procurement involving EU
funds, launched at the initiative of the European Parliament, was commissioned by OLAF. Its
findings fed into both the thematic chapter and the national chapters. Another study concerned
corruption in healthcare. Two Eurobarometer surveys were carried out in 2013: the first
targeted the general public, the second was done on a representative sample of companies in
each Member State. Data on corruption at regional level were drawn from the Study on
Quality of Government carried out by Gothenburg Quality of Government Institute. Finally,
the Commission has used information generated by research projects co-funded by the EU,
such as the National Integrity System reports carried out by Transparency International.
The EU Anti-Corruption Report also builds on the Cooperation and Verification Mechanism
(CVM), a post-accession follow-up mechanism for Romania and Bulgaria that is managed by
the European Commission. While these two mechanisms serve different purposes, the current
report draws on the extensive knowledge and lessons acquired in the CVM process and makes
references in the two country chapters accordingly. After the conclusion of the CVM
procedure, this report will continue to follow up on those issues which are relevant in the
context of corruption.